the first day of a new congress: a guide to proceedings on

The First Day of a New Congress:

A Guide to Proceedings on the House Floor

Updated December 7, 2020

Congressional Research Service

https://crsreports.congress.gov

RL30725

The First Day of a New Congress: A Guide to Proceedings on the House Floor


Summary Article 1, Section 2 of the Constitution sets a term of office of two years for all Members of the

House. One House ends at the conclusion of each two-year Congress, and the newly elected

Representatives must constitute a new House at the beginning of the next Congress.

Consequently, the House must choose its Speaker and officers and adopt the chamber’s rules of procedure every two years.

The Constitution mandates that Congress convene at noon on January 3, unless the preceding

Congress by law designated a different day. For example, P.L. 113-201 set January 6, 2015, as the

convening date of the 114th Congress. Congressional leaders planned that the 115th Congress would convene January 3, 2017, and that the 116th Congress would convene January 3, 2019,

obviating the need for a law to set the date. Although no officers will have been elected when the

House first convenes, officers from the previous Congress perform certain functions, such as conducting the election of the Speaker.

The House follows a well-established first-day routine. The proceedings include—

a call to order by the Clerk of the House;

a prayer led by the Chaplain and the Pledge of Allegiance led by the Clerk;

a quorum call ordered by the Clerk;

the election of the Speaker, ordered by the Clerk and conducted with the

assistance of tellers;

remarks by the Speaker-elect, followed by his or her swearing-in by the dean of

the House;

the oath of office for the newly elected and re-elected Members, administered by

the Speaker;

adoption of the rules of the House for the new Congress;

adoption of various administrative resolutions and unanimous consent

agreements; and

announcement of the Speaker’s policies on certain floor practices.

On opening day, the House often adopts resolutions assigning some or many of its Members to

committees. This process regularly continues over several more weeks. The committee

assignment process occurs primarily within the party groups—the Republican Conference and the

Democratic Caucus. Other routine organizational business may also be taken up on the House

floor on the first day, such as adoption of a resolution to allow a judge or a Member of Congress to administer the oath of office to one or more Members-elect who are absent.

Some resolutions on opening day are dependent on specific circumstances and do not occur at the

beginning of each new Congress. At the outset of a new Congress following a presidential election, the House and Senate must adopt a resolution agreeing to meet to count the electoral votes cast for President and Vice President.

For an explanation of proceedings occurring on the first day in the Senate, see the companion

report: CRS Report RS20722, The First Day of a New Congress: A Guide to Proceedings on the Senate Floor.



Contents

Introduction ................................................................................................................... 1

The House Convenes ....................................................................................................... 1

Election of the Speaker .................................................................................................... 2

Swearing-in of the Speaker ............................................................................................... 4

Oath of Office for Members-Elect ..................................................................................... 5

Announcement of Party Leaders ........................................................................................ 6

Election of Officers ......................................................................................................... 6

Notification to the Senate and the President......................................................................... 7

Adoption of House Rules of Procedure ............................................................................... 7

Separate Orders and Other Components ........................................................................ 8 Special Orders........................................................................................................... 9 Speaker’s Announcements ........................................................................................ 10 Legislative Protocols ................................................................................................ 10 Memoranda of Understanding Between Committees ..................................................... 10

Daily Meeting Time for the House ................................................................................... 11

Morning Hour .............................................................................................................. 11

Extension of Remarks .................................................................................................... 11

Alternate Meeting Place ................................................................................................. 12

Committee Organization ................................................................................................ 12

Other First-Day Floor Actions ......................................................................................... 12

Counting Electoral Votes .......................................................................................... 13 Other First-Day Business .......................................................................................... 13

Contacts

Author Information ....................................................................................................... 14


Congressional Research Service 1

Introduction The House of Representatives follows a well-established routine on the opening day of a new

Congress. The proceedings include electing and swearing in the Speaker, swearing in Members, 1

electing and swearing in House administrative officers, and adopting rules of procedure and

various administrative resolutions. Resolutions assigning some or many Members to committees may also be adopted.

The House must take these actions at the beginning of each new Congress because it is not a

continuing body. Article 1, Section 2 of the Constitution sets a term of office for Members of the

House at two years. Thus, one House ends at the conclusion of each two-year Congress, and the newly elected Representatives must constitute a new House at the beginning of a new Congress. 2

The House Convenes The Twentieth Amendment to the Constitution directs that a new Congress convene at noon on

January 3 in each odd-numbered year, unless the preceding Congress has by law designated a

different day for the new Congress’s convening. On November 20, 2014, the 113th Congress completed action on H.J.Res. 129, setting the convening date for the 114th Congress as January 6,

2015. The joint resolution was signed into law by President Obama on December 4 (P.L. 113-

201). Congressional leaders planned that the 115th Congress would convene January 3, 2017, and

that the 116th Congress would convene January 3, 2019, obviating the need for a law to set the date.3

In recent years, it has been the exception rather than the rule for a new Congress to begin on January 3. Nine of the past 13 Congresses began on a date other than January 3:

104th Congress (January 4, 1995),







112th Congress (January 5, 2011), and

114th Congress (January 6, 2015).

1 See CRS Report R41946, Qualifications of Members of Congress, coordinated by L. Paige Whitaker (available to

congressional clients upon request). 2 For information on the convening of the House, see Charles W. Johnson, John V. Sullivan, and Thomas J. Wickham

Jr., “Assembly of Congress,” in House Practice, A Guide to the Rules, Precedents, and Procedures of the House of

Representatives (Washington, DC: GPO, 2017), pp. 155-163. (Hereinafter, House Practice.)

3 The House concluded the 114 th Congress pursuant to the terms of H.Res. 944, agreed to in the House December 7,

2016. The resolution permitted the chair (the Speaker or the Speaker pro tempore) to set dates for pro forma sessions

through January 3, 2017. See also Niels Lesniewski, “That’s a Wrap for the 114 th Congress,” CQ Roll Call, December

12, 2016, available at http://www.cq.com/doc/senatewatch-5003248?12&search=zNGDbVWv.



The 107th, 113th, 115th, and 116th Congresses convened on January 3, 2001; January 3, 2013; January 3, 2017; and January 3, 2019, respectively.4

Although no officers of the House will have been elected when the House first convenes, officers from the previous Congress perform certain functions.5 The previous Clerk of the House calls the

House to order and presides over the chamber until the Speaker is elected and sworn in. In the absence of the Clerk, the Sergeant at Arms performs this duty.6

After the Clerk calls the Representatives-elect to order, the Chaplain offers a prayer.7 The Clerk

leads the Members-elect and their guests8 in reciting the Pledge of Allegiance. The Clerk then

directs a reading clerk to call the roll of all Members-elect to establish that a quorum is present.9

In current practice, the roll is not actually called by a clerk; rather, the Members-elect record their

presence by inserting their official voting cards (obtained prior to or on opening day) in the chamber’s electronic voting machines. Once the call of the roll is completed, a majority having

registered their names, a quorum (218, if no vacancies) is indicated. This action fulfills the

requirements of Article I, Section 5 of the Constitution that a quorum be present to conduct business.

The Clerk then announces the election of the Resident Commissioner from Puerto Rico (when

applicable, since the Resident Commissioner’s term is four years) and of the Delegates—one

person from the District of Columbia and one person from each of the territories of Guam, the

U.S. Virgin Islands, the Northern Mariana Islands, and American Samoa.10 The Clerk also reports any deaths or resignations since the election.

A quorum being present, the first order of official business is the election of the Speaker of the House of Representatives.11

Election of the Speaker12 The candidates for Speaker are nominated from the floor by the leaders of their respective parties.

Traditionally, there is one candidate from the majority party and one from the minority party,

4 No law like P.L. 113-201 was enacted to set the convening date of these Congresses because their convening was

planned for the constitutionally anticipated date of January 3. 5 See CRS Report 98-396, Guide to Individuals Seated on the House Dais, by Valerie Heitshusen.

6 See House Rule II, cl. 2, in Constitution, Jefferson’s Manual, and Rules of the House of Representatives of the United

State, One Hundred Sixteenth Congress, prepared by Thomas J. Wickham, H.Doc. 115-177, 115th Cong., 2nd sess.

(Washington, DC: GPO, 2019). (Hereinafter, House Rules and Manual.) 7 A guest chaplain might also offer this prayer, as occurred in 2017 when the Very Reverend Paul Ugo Arinze offered

the prayer. In 2019, the Reverend Emanuel Cleaver, a Member-elect from Missouri, offered the opening prayer.

8 In recent Congresses, children under 12 years of age have been permitted to accompany Members on the floor for the

opening-day ceremonies.

9 All Members-elect whose credentials have been received by the Clerk are included in the first roll call on opening day

to establish a quorum. Delegates-elect and the Resident Commissioner, however, are not included in this roll call. See

“Status and Rights of Members-elect” in House Practice, pp. 159-160. 10 By law, the term of service of Delegates is also two years, but the term of service of the Resident Commissioner is

four years. See CRS Report R40555, Delegates to the U.S. Congress: History and Current Status, by Christopher M.

Davis.

11 Prior to conducting the election of the Speaker, the retiring Clerk of the House addressed the chamber on opening

day in 1995. See “Farewell Remarks of the Honorable Donnald K. Anderson,” address to House, Congressional

Record, vol. 141, part 1 (January 4, 2001), p. 440. 12 See CRS Report RL30857, Speakers of the House: Elections, 1913-2019, by Valerie Heitshusen; and CRS Report

R44243, Electing the Speaker of the House of Representatives: Frequently Asked Questions, by Valerie Heitshusen.



selected by the Republican Conference and the Democratic Caucus at their early organizational

meetings. Individual Members-elect may place other names in nomination. Debate on the

nomination of candidates for Speaker is allowed but not customary.13 Instead, the nominations are

followed immediately by a “viva voce” roll-call vote, that is, a vote in which the Members-elect

respond orally to the calling of their names. In this vote, the Members-elect call out the last name

of their choice for Speaker when their names are called by a reading clerk. The Clerk appoints Members-elect to serve as majority and minority tellers, usually two each, to ascertain the vote. 14

So long as nearly all of the majority party’s members vote for its candidate, the majority party is

able to assure its candidate’s election because the vote is likely to be almost exclusively along party lines.15 The candidates themselves, however, often vote “present” or do not vote.16

The following excerpt is from the proceedings for the election of the Speaker in the 116th Congress.17

ELECTION OF SPEAKER

The CLERK. Pursuant to law and precedent, the next order of business is the election of the Speaker of the House of Representatives for the 116th Congress. Nominations are now in order. The Clerk recognizes the gentleman from New York (Mr. Jeffries).

Mr. JEFFRIES. Madam Clerk… I rise today, as directed by the House Democratic Caucus,

to place the name of Nancy Pelosi in nomination to be the next Speaker of the United States House of Representatives …

The CLERK. The Clerk recognizes the gentlewoman from Wyoming (Ms. Cheney).

Ms. CHENEY. Madam Clerk…it is my high honor today to have the great privilege to nominate the gentleman from California (Mr. McCarthy) to lead us in that work as Speaker

of the United States House of Representatives…

The CLERK. The names of the Honorable Nancy Pelosi, a Representative-elect from the

State of California, and the Honorable Kevin McCarthy, a Representative-elect from the State of California, have been placed in nomination. Are there further nominations?

There being no further nominations, the Clerk appoints the following tellers:

The gentlewoman from Ohio (Ms. Kaptur);

The gentleman from Illinois (Mr. Rodney Davis);

See also CRS Report 97-780, The Speaker of the House: House Officer, Party Leader, and Representative , by Valerie

Heitshusen. 13 At the commencement of the 105 th Congress, the chair of the Democratic Caucus rose to “a question of the highest

constitutional privilege” to offer a resolution calling for the postponement of the election of the Speaker until the

completion of a pending investigation. His resolution proposed the election of an interim Speaker, but was ruled out of

order by the Clerk. The appeal of the Clerk’s ruling was tabled by vote of the House. See Rep. Vic Fazio, House

debate, Congressional Record, vol. 143, part 1 (January 7, 1997), pp. 115-116.

14 Tellers are Members or clerks who count, or record and count, votes cast. See “Election of Speaker,” Congressional

Record, daily edition, vol. 165 (January 3, 2019), p. H2. 15 The Speaker is elected by a majority, not a plurality, of votes cast by Members-elect. See House Rules and Manual, §

27, p. 14.

16 In the 113th, 114th, 115th, and 116th Congresses, Rep.-elect Nancy Pelosi, as the Democratic nominee, voted for

herself, as did Rep.-elect Kevin McCarthy in the 116 th Congress. Rep.-elect John Boehner (113 th and 114th Congresses)

and Rep.-elect Paul Ryan (115 th Congress), as the Republican nominees in those Congresses, did not vote. See

“Election of Speaker,” Congressional Record, daily edition, vol. 163 (January 3, 2017), pp. H3-H4. In the 110th

Congress, both party nominees for Speaker voted for themselves. See “Election of Speaker,” Congressional Record,

vol. 153, part 1 (January 4, 2007), p. 3. 17See “Election of Speaker,” Congressional Record, daily edition, vol. 163 (January 3, 2017), pp. H2-H4.



The gentlewoman from California (Ms. Lofgren); and

The gentlewoman from North Carolina (Ms. Foxx).

The tellers will come forward and take their seats at the desk in front of the Speaker’s

rostrum.

The roll will now be called, and those responding to their names will indicate by surname the nominee of their choosing.

The Reading Clerk will now call the roll.

The tellers having taken their places, the House proceeded to vote for the Speaker.

...

The CLERK. The tellers agree in their tallies that the total number of votes cast is 430, of which the Honorable Nancy Pelosi of the State of California has received 220, the Honorable Kevin McCarthy of the State of California has received 192, the Honorable Jim

Jordan of the State of Ohio has received 5, the Honorable Cheri Bustos of the State of Illinois has received 4, the Honorable Tammy Duckworth of the State of Illinois has received 2, the Honorable Stacey Abrams of the State of Georgia has received 1, the

Honorable Joseph Biden of the State of Delaware has received 1, the Honorable Marcia Fudge of the State of Ohio has received 1, the Honorable Joseph P. Kennedy III of the State

of Massachusetts has received 1, the Honorable John Lewis of the State of Georgia has received 1, the Honorable Thomas Massie of the State of Kentucky has received 1, the Honorable Stephanie Murphy of the State of Florida has received 1, with 3 recorded as

present.

Therefore, the Honorable Nancy Pelosi of the State of California, having received a majority of the votes cast, is duly elected Speaker of the House of Representatives for the 116th Congress.

Swearing-in of the Speaker After the Speaker’s election, the Clerk appoints a bipartisan committee to escort the Speaker-elect

to the Speaker’s chair on the dais. The Speaker-elect is escorted by leaders of both parties and,

often, by Representatives-elect from his or her home state. He or she is introduced to the chamber

by the minority leader, who might deliver a statement from the chair. The Speaker may make a

statement of his or her own and then takes the oath of office.18 By precedent, the dean of the House, the most senior (longest-serving) Member, regardless of party, administers the oath to the

Speaker.19 That oath is identical to that of the other Members. (See “Oath of Office for Members-Elect.”)

The Speaker during the day’s proceedings delivers a letter to the Clerk listing Members in the

order in which they may act as the Speaker pro tempore, should a vacancy occur in the office, until a new Speaker is elected.20

18 Reps. Nancy Pelosi and Kevin McCarthy, “Election of Speaker,” remarks in House, Congressional Record, daily

edition, vol. 165 (January 3, 2019), pp. H5-H6. In the 106th Congress, the Speaker-elect broke with tradition and

delivered his remarks from the floor of the House rather than the dais. See Rep . Dennis Hastert, “Election of the

Speaker,” Congressional Record, vol. 145, part 1 (January 6, 1999), pp. 44-45.

19 Rep. Don Young (R-AK) was the dean of the House in the 116 th Congress. His service began on March 6, 1973. See

“Election of Speaker,” oath of office, Congressional Record, daily edition, vol. 165 (January 3, 2019), p. H6. 20 See “Announcement by the Speaker Pro Tempore,” letter, Congressional Record, daily edition, vol. 165 (January 3,

2019), p. H198; and House Rule I, cl. 8(b)(3)(B).



Oath of Office for Members-Elect After taking the oath, the Speaker administers the oath to all Members of the House, en masse,

including the nonvoting Delegates and Resident Commissioner. The Speaker directs the

Representatives-elect to rise and raise their right hands. The oath, which follows, is stated in the form of a question, to which the newly elected Members respond in the affirmative:

[Do you] I do solemnly swear (or affirm) that [you] I will support and defend the

Constitution of the United States against all enemies, foreign and domestic; that [you] I will bear true faith and allegiance to the same; that [you] I take this obligation freely, without any mental reservation or purpose of evasion; and that [you] I will well and

faithfully discharge the duties of the office on which [you] I am about to enter[?]. So help [you] me God.21

An oath is mandated by Article VI of the Constitution, and its text is set by statute (5 U.S.C.

3331).22 As the Members-elect raise their right hands, they are not required to hold anything in their left hands. Many have held a family Bible or another religious text in their left hands, but there is no requirement that anything be held when the oath is taken.

The same is true for Representatives who re-enact the event with their families and the Speaker in the Speaker’s office after the formal ceremony. Many Members choose to hold something

meaningful in their left hands. These objects have often been, but are not limited to, a family

heirloom or something else of special significance. Nothing, however, is required. It is up to the

Member to determine what, if anything, he or she holds.23 While photography is not permitted of the swearing-in on the House floor, ceremonial swearing-ins may be photographed or recorded.

Members who were not present when all Members were sworn in might take the oath in the

House chamber later on opening day.24 Occasionally, the swearing-in of a Member-elect is

delayed because of illness or other circumstances. When that happens, the Member-elect is sworn in at a later date in the House chamber or elsewhere by someone designated by the Speaker. The

oath of office may be administered by another Member or by a judge. The location has been at sites in Washington, DC, other than the Capitol and in other parts of the country.

If the swearing-in of a Member is challenged, the Speaker, pursuant to House precedents, will ask

the Member-elect to remain seated while the others are sworn in. The House then determines the disposition of the challenge.25

21 “Swearing In of Members,” oath of office, Congressional Record, daily edition, vol. 165 (January 3, 2019), p. H7.

22 The President’s oath is set forth in the Constitution (U.S. Const. art . II, § 1, cl. 7).

23 In the 110th Congress, for example, Rep.-elect Keith Ellison of Minnesota, the first Muslim elected to Congress, used

a Quran when he re-enacted his swearing-in with the Speaker. See “First Muslim Lawmaker Takes Oath With Quran,”

USA Today, January 5, 2007, p. 3; and Gail Feinberg and the Library of Congress, “Members Borrow Historic Books from the Library,” The Gazette, vol. 18, January 12, 2007, pp. 3-5. In 2008, Rep.-elect André Carson of Indiana, the

second Muslim elected to Congress, used a copy of the House Rules and Manual for his ceremonial swearing-in after

he was sworn in following election to a vacant seat in the 110th Congress. See Emily Heil and Anna Palmer, “Carson’s

Jeffersonian Moment,” Roll Call, March 17, 2008, p. 19.

24 Once a Member-elect has been sworn in, he or she may vote on all subsequent questions. If a Member misses a vote

on opening day or any other occasion, he or she might want to make known a position on the question. See “Personal

Explanation,” in House Practice, p. 963.

25 On January 3, 1985, for example, the seating of Rep.-elect Richard McIntyre of the Eighth Congressional District of Indiana was challenged. In that incident, the House adopted a resolution (H.Res. 1), declining to seat McIntyre and

referring the challenge to the House Administration Committee for further examination. The Member -elect’s opponent,

Frank McCloskey, was ultimately seated. See “Election Contests and Disputes,” in House Practice, pp. 491-496; and



Announcement of Party Leaders After the Speaker administers the oath of office, he or she receives reports from the chairs of the

two party organizations, the Democratic Caucus and the Republican Conference, who announce their parties’ choice for majority leader and minority leader.

Mr. JEFFRIES. Madam Speaker, as chairman of the Democratic Caucus, I have been

directed to report to the House that the Democratic Members have selected as majority leader the distinguished gentleman from Maryland, the Honorable STENY HOYER.

Ms. CHENEY. Madam Speaker, as chairman of the Republican Conference, I have been directed to report to the House that the Republican Members have selected as minority

leader the gentleman from California, the Honorable KEVIN MCCARTHY.26

The party chairs then announce the names of those elected to serve as majority and minority whips.27

Election of Officers The House next turns to the election of its administrative officers: Clerk, Sergeant at Arms, Chief

Administrative Officer, and Chaplain. A simple resolution nominating the slate of candidates is

offered by the chair of the caucus or conference of the majority party. The minority party proposes its own roster of candidates as an amendment to the majority party’s resolution. By

tradition, neither the resolution nor the amendment is debated, although the slate can be divided

with a separate vote on any or all officers.28 Again, because of its numerical advantage, the

Rep. James Wright, “Referring Election of a Member from the Eighth Congressional District of Indiana to the

Committee on House Administration,” Congressional Record, vol. 131, part 1 (January 3, 1985), pp. 381-388.

In contrast, Rep.-elect Vern Buchanan of Florida’s Thirteenth Congressional District was seated pending the outcome

of a contested election. In response to a parliamentary inquiry before Members-elect were sworn, the Speaker stated:

“The seating of this Member-elect is entirely without prejudice to the contest over the final right to that seat that is

pending under the [Federal Contested Elections Act] and will be reviewed in the ordinary course in the Committee on

House Administration.” See “Swearing in of Members,” oath of office, Congressional Record, vol. 153, part 1 (January

4, 2007), p. 5. Similarly, Rep.-elect Loretta Sanchez was seated without prejudice to the House’s ultimate

determination of the winner of the election in the Forty-sixth District of California. See “Swearing In of Members,”

oath of office, Congressional Record, vol. 143, part 1 (January 7, 1997), p. 120.

See also CRS Report RL33780, Procedures for Contested Election Cases in the House of Representatives, by L. Paige

Whitaker. Additional discussion also appears in an out-of-print report, available to congressional clients from its

author: CRS Report 98-194, Contested Election Cases in the House of Representatives: 1933 to 2011 , by L. Paige

Whitaker. Regarding qualifications of Members of the House, see CRS Report R41946, Qualifications of Members of

Congress, coordinated by L. Paige Whitaker (available to congressional clients upon request).

26 See “Majority Leader” and “Minority Leader,” announcement, Congressional Record, daily edition, vol. 165

(January 3, 2019), p. H7. See also CRS Report RL30665, The Role of the House Majority Leader: An Overview, by

Walter J. Oleszek; and CRS Report RL30666, The Role of the House Minority Leader: An Overview, by Mark J.

Oleszek. 27 The Democratic Caucus chair also announces the selection of the Assistant Speaker. See “Majority Whip” and

“Minority Whip and Assistant Democratic Leader,” announcement, Congressional Record, daily edition, vol. 165

(January 3, 2019), p. 76. See also CRS Report RS20881, Party Leaders in the House: Election, Duties, and

Responsibilities, by Valerie Heitshusen.

28 T raditionally, a Member asks for a division so that there will be separate vote on the chaplain; the minority does not

then include an alternate chaplain in its amendment. See “Electing Officers of the House of Representatives,” House

debate, Congressional Record, daily edition, vol. 165 (January 3, 2019) p. H7.



majority is usually able to defeat the minority substitute and to adopt the resolution naming its chosen candidates. The Speaker administers the oath to the newly elected officers.29

Notification to the Senate and the President The House adopts simple resolutions to formally notify the Senate and the President that it has

elected its leaders, is assembled, and is ready to receive messages from them. Subsequently, the

majority and minority leaders as well as two Senators (usually the majority and minority leaders) telephone the President with the news that Congress has assembled and is ready to begin its work.

The Clerk of the House is also authorized by resolution to inform the President that the House has selected its Speaker and Clerk.30

Adoption of House Rules of Procedure The next order of business is the adoption of the rules of the House. Although the rules of one

House do not carry over to the next House, a newly elected House typically approves its rules by adopting the rules of the previous Congress with specific amendments.31 Traditionally, prior to the

first day of a new Congress, majority and minority Rules Committee members and possibly other

party groups have worked on any changes the majority or minority wish to implement in the

House’s standing rules.32 With the majority party’s numerical advantage, its rules package, as presented, prevails.

The majority’s proposed rules are offered in the form of a House simple resolution, often

numbered H.Res. 5, although in the 116th Congress, the resolution was H.Res. 6.33 Since there are at that time no existing House rules, the resolution is considered under “general parliamentary

law,” which the House interprets to resemble in large part the rules in force in the preceding

Congress.34 Debate is normally limited to one hour, although the time might be extended by

unanimous consent, and the majority party floor manager of the resolution traditionally yields

29 Ibid. See also CRS Report RL33220, Support Offices in the House of Representatives: Roles and Authorities, by Ida

A. Brudnick; CRS Report R41807, House and Senate Chaplains: An Overview, by Ida A. Brudnick; CRS Report

RS20544, The Office of the Parliamentarian in the House and Senate , by Valerie Heitshusen; and CRS Report

RS22890, House Office of General Counsel, by Matthew E. Glassman.

30 See “To Inform the Senate That a Quorum of the House Has Assembled and of the Election of the Speaker and the Clerk,” “Authorizing the Speaker To Appoint a Committee To Notify the President of the Assembly of the Congress,”

and “Authorizing the Clerk To Inform the President of the Election of the Speaker and the Clerk,” Congressional

Record, daily edition, vol. 165 (January 3, 2019), pp. H7-H8.

31 For the 116th Congress rules resolution debate, see “Rules of the House,” House debate, Congressional Record, daily

edition, vol. 165 (January 3, 2019), pp. H17-H32. In the 106 th Congress, for the first t ime in over 100 years, the House

recodified its rules. The majority and minority had worked together in the prior Congress on the recodification. The

majority also offered several amendments to the recodified rules. See “Rules of the House,” House debate,

Congressional Record, vol. 145, part 1 (January 6, 1999), pp. 47-235.

32 See CRS Report RL30787, Parliamentary Reference Sources: House of Representatives, by Gail E. Baitinger. 33 On a few occasions, the House has first adopted a special rule governing consideration of that Congress’s rules

resolution. In the 104 th, 110th, and 116th Congresses, for example, these special rules were numbered H.Res. 5 and the

rules resolutions were numbered H.Res. 6. See also CRS Report 98-354, How Special Rules Regulate Calling up

Measures for Consideration in the House, by Richard S. Beth.

34 For a summary of the procedures the House follows in the brief period of time it is in session prior to the formal

adoption of its own rules, see “Assembly of Congress,” in House Practice, pp. 155-163.



half the debate time “for purposes of debate only” to the minority floor manager. Participants in the debate discuss the majority’s proposal and any minority-party alternate proposal.35

At the end of debate time, the majority manager moves the previous question. The majority party’s numerical advantage assures the adoption of this debate-ending motion. The effect is to

force a nearly immediate vote on the question of final approval of the majority’s own rules

package. Adoption of the previous question motion ends debate and prevents the minority from

actually offering its alternate rules package.36 Nonetheless, the minority still has the ability to

offer a motion to commit with instructions, that is, one more chance to offer an amendment to the majority’s rules resolution.37 Only 10 minutes of debate, equally divided, is allowed but the

House often forgoes this debate by unanimous consent. With its numerical majority, the majority

party is able to prevail in defeating a motion to commit, if offered,38 and, then, in adopting its rules resolution.

Separate Orders and Other Components

In addition to allowing the adoption of the previous House’s rules with specific amendments to

those rules, a rules resolution may include other provisions that govern additional House action or activities. Such provisions typically appear as the final sections of the rules resolution, may be

extensive, and may be labeled as separate orders, additional orders, or even with a specific name.

In the 116th Congress rules resolution, for example, Section 103 was labeled Separate Orders;

Section 104 was labeled Committees, Commissions, and House Offices; and Section 105 was

labeled Order of Business.39 Additional titles of the resolution established a Select Committee on

the Modernization of Congress and authorized House intervention in litigation involving the Patient Protection and Affordable Care Act.

The separate orders in Section 103 of H.Res. 6 pertained to House rules (e.g., granting deposition authority to most House committees) and rules in rulemaking statutes (e.g., the War Powers

Resolution and the Congressional Budget Act). These separate orders and other orders departed

35 The prospective chair of the Rules Committee, who manages debate for the majority, inserts an explanation of the

proposed rules changes in the Congressional Record. See Rep. James McGovern, “H.Res. 6,” insert, Congressional

Record, daily edition, vol. 165 (January 3, 2019), pp. H26-H29. See also CRS Report RS22991, Speaking on the House

Floor: Gaining Time and Parliamentary Phraseology, by Elizabeth Rybicki. 36 If the minority has an amendment to the majority’s rules resolution, the minority floor manager asks Members to

defeat the previous question so that the minority may offer its amendment. In the 115 th Congress, for example, the

minority’s amendment would have added a new paragraph to Rule XXI (“Restrictions on Certain Bills”). The

amendment would have prohibited the House from considering a bill, joint resolution, amendment, or conference report

that adversely affected health benefits in one of seven ways or that reduced taxes for very wealthy taxpayers or

increased taxes for 80% of the population that was comparatively the least wealthy. See Rep. Louise Slaughter, House

debate “An Amendment to H.Res. 5 Offered by Ms. Slaughter of New York,” daily edition, vol. 163 (January 3, 2017),

pp. H25-H26.

37 A “motion to commit” is a motion to send to committee a matter that had not previously been referred to a

committee. A “motion to recommit” is a motion to send back to committee a matter that had been reported from the

committee. See Walter Kravitz, Congressional Quarterly’s American Congressional Dictionary , 3rd ed. (Washington,

DC: CQ Press, 2001), pp. 45-46 and 205. 38 See Rep. John Lewis, “Motion to Commit,” House debate, Congressional Record, daily edition, vol. 163 (January 3,

2017), pp. H26-H27. The minority’s proposed amendment to the rules resolution (instructions in the motion to commit)

sought to strike an addition to House rules that established a fine for certain uses of electronic equipment on the House

floor and that created a standard of conduct against actions that could be considered as “ impeding in the rights of

another Member” on the floor and that would be punishable by the House. The quotation can be found at Rep. Pete

Sessions, “Rules of the House,” insert, Congressional Record, daily edition, vol. 163 (January 3, 2017), p. H12.

39 Other provisions as well as similar ones appeared in House rules resolutions in preceding Congresses.



from or interpreted these rules in a specific manner and were applicable for the first session of the 116th Congress or for the duration of the 116th Congress.

The provisions related to committees, commissions, and House offices in Section 104 of the 116th Congress rules resolution continued the existence for the 116th Congress of resolutions from prior

Congresses that created the House Democracy Partnership, the Tom Lantos Human Rights

Commission, and the Office of Congressional Ethics. The House needed to formally indicate that

these resolutions were in effect since a simple resolution normally expires at the end of the Congress in which it is adopted.

An additional order in Section 105 provided for the reading of the Constitution in the House.40

Special Orders

The terms special order and special rule are used somewhat interchangeably.41 In either case, a

special rule may make in order House consideration of a measure and establish the terms of the

measure’s debate and amendment, among other provisions. It might also alter specific rules of the House only for the consideration of one or more measures identified in the special order, perhaps

permitting an action that would otherwise be prohibited. When the majority party wishes to begin

moving quickly in a new Congress on legislation, it might include in the rules resolution special

orders making in order the consideration of specified measures or temporarily altering specific rules to allow the consideration of a specified measure.

In the 116th Congress, Section 105 of H.Res. 6 permitted motions to suspend the rules to be made

on any of the subsequent eight legislative days. Without this order, the motion could be made

only on Mondays, Tuesdays, and Wednesdays. A similar provision in Section 5 of H.Res. 5 in the 112th Congress applied to a resolution to be considered on Thursday, January 6, 2011, that

reduced salaries and expenses authorized for Member, committee, and leadership offices. This

provision also expanded the debate time of 40 minutes under the rule on suspension of the rules to 2 hours.42

In the 111th Congress, Section 5 of H.Res. 5 made in order the consideration of H.R. 11, the Lilly

Ledbetter Fair Pay Act, and H.R. 12, the Paycheck Fairness Act, and set the terms for the

measures’ debate. The House agreed to H.Res. 5 on January 6, 2009. On January 9, it considered

H.R. 11 and H.R. 12 under the terms of the special order included in H.Res. 5, and passed the bills.

In the 110th Congress, special orders were included in H.Res. 6 providing for the consideration of H.R. 1, pertaining to recommendations of the 9/11 Commission; H.R. 2, relating to the minimum

wage; H.R. 3, governing stem cell research; and H.R. 4, authorizing the Secretary of Health and Human Services to negotiate drug prices under Medicare Part D.

H.Res. 5 in the 106th Congress made in order consideration of a resolution to amend the House

gift rules (H.Res. 9). H.Res. 6 in the 104th Congress made in order the consideration of H.R. 1, the Congressional Accountability Act.

40 The same provision has appeared in a number of biennial House rules resolutions.

41 See CRS Report 98-354, How Special Rules Regulate Calling up Measures for Consideration in the House , by

Richard S. Beth. 42 See CRS Report 98-314, Suspension of the Rules in the House: Principal Features, by Elizabeth Rybicki.



Speaker’s Announcements

On the day of convening or shortly thereafter, the Speaker customarily announces the Speaker’s policies with respect to certain floor practices for the duration of the Congress. These policies are

grounded in authority or discretion granted the Speaker in the rules. The 10 policies in effect for the 116th Congress address—

privileges of the floor,

introduction of bills and resolutions,

unanimous consent requests for the consideration of legislation,

recognition for one-minute speeches,

recognition for special-order speeches,

decorum in debate,43

conduct of votes by electronic device,44

use of handouts on the House floor,

use of electronic equipment on the House floor,45 and

use of the House chamber.46

Legislative Protocols

In recent Congresses, the majority leader has initiated a set of written protocols to guide the

scheduling or consideration of legislation during a two-year Congress. The protocols cover

matters involving the content of authorization bills, the availability of measures scheduled for

consideration under the suspension of the rules procedure, and other items. Both parties’ rules also contain guidance on scheduling or considering legislation. For example, both parties’ rules

contain guidance on legislation qualifying to be considered under the suspension of the rules procedure. These protocols and party rules are not printed in the Congressional Record.47

Memoranda of Understanding Between Committees

The Speaker, the chair of the Rules Committee, or the chairs of relevant committees might submit

memoranda of understanding for printing in the Congressional Record. These memoranda most

often provide guidance on the referral of legislation where an ambiguity is present, possibly triggered by a change in rules. In the 114th Congress, for example, the Speaker inserted three

43 Discussion of decorum in debate appears in House Practice, pp. 407-430.

44 For background on voting in the House, see CRS Report 98-988, Voting and Quorum Procedures in the House of

Representatives, coordinated by Elizabeth Rybicki; and House Practice, pp. 937-970.

45 In the 115th Congress, the Speaker pro tempore also addressed a rule change relating to electronic devices in an

announcement earlier in the day’s proceedings and responded to a parliamentary inquiry following the announcement.

“Announcement by the Speaker Pro Tempore,” parliamentary inquiry, Congressional Record, daily edition, vol. 163

(January 3, 2017), p. H28. 46 See, “Announcement by the Speaker Pro Tempore,” Congressional Record, daily edition, vol. 165 (January 3, 2019),

pp. H198-H201.

47 For protocols for the 116 th Congress, see Majority Leader Steny Hoyer’s website at https://www.majorityleader.gov/

content/116th-congress-legislative-protocols. The House Republican Conference’s rules are available at

https://www.gop.gov/conference-rules-of-the-116th-congress/. House Democratic Caucus rules are available at

https://www.dems.gov/caucus-rules-of-116th-congress.



memoranda of understanding between the chair of the Judiciary Committee and, respectively, the

chairs of the Agriculture, Energy and Commerce, and Ways and Means Committees.48 In adopting

H.Res. 5, the House made a change in the Judiciary Committee’s jurisdiction by adding the

phrase “and criminalization” to the committee’s jurisdiction over “criminal law enforcement.”49

The change was intended to “cover measures that alter the elements of a crime so as to

criminalize new conduct and, in so doing, trigger an existing criminal penalty.” Measures reported from committees other than Judiciary with these kinds of provisions had affected the scope of the Judiciary Committee’s jurisdiction over criminal law enforcement.50

The Speaker might alternately include a policy statement in the Speaker’s announcements for a Congress.51

Daily Meeting Time for the House The House establishes its daily hour of meeting for the first session of the new Congress by a simple resolution. It must therefore be renewed for the next session of Congress.52

Morning Hour The House by unanimous consent allows a period preceding House sessions called Morning Hour. In Morning Hour, Members may speak up to five minutes on topics of their choice.53

Extension of Remarks To eliminate a routine daily unanimous consent request, the House agrees by unanimous consent

at the beginning of a Congress that Members may publish remarks and include supporting information in the Extension of Remarks section of the Congressional Record.54

48 Speaker John A. Boehner, “Memoranda of Understanding between the Committee on the Judiciary and the

Committees on Agriculture, Energy and Commerce, and Ways and Means,” Extension of Remarks, Congressional

Record, daily edition, vol. 161 (January 6, 2015), p. E1.

49 Section 2(b)(2)(A) of H.Res. 5, agreed to in the House January 6, 2015. 50 See the explanation of the rule change and the full quotation at Rep. Pete Sessions, “H.Res. 5,” insert, Congressional

Record, daily edition, vol. 161 (January 5, 2015), pp. H12-H14.

51 See, for example, Speaker Dennis Hastert, “Memorandum of Understanding between Energy and Commerce

Committee and Financial Services Committee,” insert, Congressional Record, vol. 147, part 1 (January 20, 2001), p.

163, which was later followed by “Announcement by the Speaker Pro Tempore,” Congressional Record, vol. 151, part

1 (January 4, 2005), p. 71. 52 See “Fixing the Daily Hour of Meeting of the First Session of the One Hundred Sixteenth Congress,” House debate,

Congressional Record, daily edition, vol. 165 (January 3, 2019), p. H197.

53 See “Making in Order Morning-Hour Debate,” unanimous consent, Congressional Record, daily edition, vol. 165

(January 3, 2019), p. H198.

54 See “Granting Members Permission To Extend Remarks and Include Extraneous Material in the Congressional

Record during the 116 th Congress,” unanimous consent, Congressional Record, daily edition, vol. 165 (January 3,

2019), p. H198.



Alternate Meeting Place The House adopts a concurrent resolution (H.Con.Res. 1, 116th Congress) by unanimous consent

to allow the Speaker and the majority leader of the Senate (or their designated representatives) to

notify the Members of the House and Senate to assemble outside of Washington, DC, if circumstances require it.55

Committee Organization The committee assignment process occurs largely within the party groups—the Republican

Conference and the Democratic Caucus. The conference and the caucus have their own rules

governing committee assignments. The only action visible on the chamber floor is the adoption of

simple resolutions that implement the committee nominations recommended by the conference

and the caucus. The adoption of such resolutions is routine and occurs without debate or

amendment because of the tacit understanding that each party has a right to establish its own internal distribution of committee assignments. The House may take up one or more assignment

resolutions on opening day, but the consideration of additional assignment resolutions extends throughout January and possibly for several additional weeks.56

The House typically in March adopts a funding resolution for its committees. Interim funding through March would have been provided by the House in the preceding Congress.57

Other First-Day Floor Actions Other routine organizational business may be taken up on the House floor on the first day.

Concurrent resolutions may be adopted providing for a joint session of Congress to receive the President’s State of the Union message, or providing for an adjournment of the House and

Senate.58 The Speaker and minority leader might make appointments to commissions or

committees or other offices.59 A resolution of condolence on the death of a Member that occurred subsequent to the adjournment of the last Congress may also be considered.60

55 See “Regarding Consent To Assemble Outside the Seat of Government,” House debate, Congressional Record, daily

edition, vol. 165 (January 3, 2019), p. H197.

56 See, for example, the two entries on the same page labeled “Electing Members to Certain Standing Committees of

the House of Representatives,” House debate, Congressional Record, daily edition, vol. 165 (January 3, 2019), p. H32. 57 If the House creates a new committee in its rules resolution, it might provide interim funding. See, for example,

“Providing Amounts for Interim Expenses of the Committee on Homeland Security in the First Session of the 109 th

Congress,” House debate, Congressional Record, vol. 151, part 1 (January 4, 2005), pp. 71-73. See also, CRS Report

RL32794, House Committee Funding Requests and Authorizations, 104th-116th Congresses, by William T . Egar.

58 See, for example, “Providing for a Conditional Recess or Adjournment of the Senate and an Adjournment of the

House of Representatives,” House debate, Congressional Record, vol. 157, part 1 (January 7, 2011), p. 106. 59 See “Appointment—House Office Building Commission,” “Appointment of Member to Permanent Select

Committee on Intelligence,” and “Appointment of Member to the Joint Economic Committee,” announcement,

Congressional Record, daily edition, vol. 163 (January 3, 2017), p. H33. See also, “Authorizing the Speaker, Majority

Leader and Minority Leader to Accept Resignations and Make Appointments during the 116 th Congress,” unanimous

consent, Congressional Record, daily edition, vol. 165 (January 3, 2019), p. H197.

60 See, for example, “Expressing Sorrow of the House at the Death of the Honorable Robert T . Matsui, Member of

Congress from the State of California,” Congressional Record, vol. 151, part 1 (January 4, 2005), pp. 84-103. See also

“Expressing Profound Regret and Sorrow of the House on the Death of Gerald R. Ford, 38 th President of the United

States of America,” Congressional Record, vol. 153, part 1 (January 4, 2007), p. 493.



Counting Electoral Votes

Some resolutions are dependent on specific circumstances that might not occur in every new Congress. For example, following a presidential election, the new House adopts resolutions

providing for the counting by the new Congress of electoral votes cast for the President and Vice

President of the United States;61 continuing the Joint Congressional Committee on Inaugural Ceremonies; and authorizing the use of the Capitol and its grounds for inaugural activities. 62

Other First-Day Business

After the House has completed its initial organizational proceedings, it might then turn to

legislative or routine business, which normally completes its legislative day. Routine business might include the introduction of bills and resolutions,63 receipt and referral of messages from the

President and executive agencies,64 receipt of messages from the Senate,65 one-minute and special-order speeches,66 and notices and announcements required by House rule or regulation.67

61 By law (3 U.S.C. 15), the House and Senate meet to count the electoral votes on January 6 at 1:00 p.m. in the House

chamber, following the previous month’s meeting of the electors. On the opening day of the 115 th Congress, the House

concurred in S.Con.Res. 2, providing for the joint meeting on January 6, 2017. In 2013, January 6 fell on a Sunday. The

112th Congress enacted a change in the law applicable only to the counting of electoral votes following the 2012

presidential election, setting the date of the joint session as January 4, 2013 (H.J.Res. 122; P.L. 112-228). See also CRS

Report RL32717, Counting Electoral Votes: An Overview of Procedures a t the Joint Session, Including Objections by

Members of Congress, coordinated by Elizabeth Rybicki and L. Paige Whitaker.

62 The 116th Congress agreed on May 6, 2020, to create the Joint Committee on Inaugural Ceremonies to make

arrangements for the inauguration (S.Con.Res. 38). 63 The rules resolution typically includes an order reserving bill numbers (for the first session or for both sessions of a

Congress) for the majority (H.R. 1-H.R. 10) and the minority (H.R. 11-H.R. 20). A sponsor with his or her party

leadership’s agreement may introduce a bill within this allotment at any time and may designate one of the remaining

numbers to be assigned to it . See Section 103(e) of H.Res. 6, agreed to in the House January 3, 2019. See also CRS

Report R46603, Bills, Resolutions, Nominations, and Treaties: Characteristics and Examples of Use, by Jane A.

Hudiburg; and CRS Report 95-563, The Legislative Process on the House Floor: An Introduction , by Christopher M.

Davis.

64 See “Executive Communications, Etc.,” Congressional Record, daily edition, vol. 163 (January 3, 2017), p. H37. 65 See “Message From the Senate,” Congressional Record, daily edition, vol. 163 (January 3, 2017), p. H28.

66 See, for example, “Special Orders,” Congressional Record, vol. 153, part 1 (January 4, 2007), pp. 43-58.

67 See, for example, the notice of receipt of a subpoena at “Communication from Chief of Staff of Hon. John M. Shimkus, Member of Congress,” Congressional Record, vol. 149, part 1 (January 7, 2003), p. 22; “Communication

from the Clerk of the House,” Congressional Record, daily edition, vol. 163 (January 3, 2017), p. H34; and

“Announcement by the Speaker Pro Tempore,” announcement of the whole number of the House, Congressional

Record, daily edition, vol. 163 (January 3, 2017), p. H36.


Congressional Research Service RL30725 · VERSION 30 · UPDATED 14

Author Information

Christopher M. Davis

Analyst on Congress and the Legislative Process

Acknowledgments

Mildred Amer, Judy Schneider, and Michael L. Koempel, all former CRS specialists on the Congress, authored earlier versions of this report.

Disclaimer

This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other

than public understanding of information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not

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